In th e S u p re m e Co u rt o f Ge o rg ia

De c id e d: Oc to be r 6 , 2 0 1 4

S 1 4 A0 7 7 9

. HEIS KELL, COMR., e t a l. v . ROBERTS

.

NAHMIAS , Ju stic e

.

Bru c e Ro b e rts fi l e d s u it a g a in st W a lk e r Co u n ty a n d its so le c o m m issio ne r,

Be b e He isk e ll (c olle c tiv e ly

, “ Ap p e lla n ts” ), c la im in g th a t th e c o u n ty u n d e rp a id

h im fo r th e 1 5 m o n th s th a t h e se rv e d a s ju d g e o f t h e S t a te Co u rt o f Wa lk e r

Co u n ty

. Ap p e lla n ts d e n ie d a n y u n d e rp ay m e n t, d e nie d Ro b e rts’s re q u e st to p a y

h i s l e g a l fe e s in c o n ne c tio n with th e c a se , a n d file d c o un te rc la im s a lle g in g

a m o n g oth e r th in g s th a t th e c o u n ty a c tu a lly o v e rp a id R o b e r ts e a c h m o n th a n d

wa s e n title d to re im

b u rse m e n t f

o r th e o v e rp a y m e nts. On c ro ss-m o tio n s fo r

su m m ary ju d g m e nt, th e tria l c o u r t g r a n te d Ro b e rts’s m a n d a m u s c la im a n d

o r de re d th e c o u n ty to p a y h im $ 7 8

, 8 7 8 .5 5 in u n p a id sa la ry ; d is mi s s e d

Ap p e lla n ts’ c ou n te rc la im s a s b a rre d b y ju d ic ia l im m u n ity ; a nd o rd e re d th e

c o u n ty to p a y Ro b e rts’s a tto rn e y fe e s.As e x p la in e d b e lo w, th e tria l c ou rt e rre d in gra ntin g su m m a ry ju d g m e n t

o n th e m a n d a m

us c la im to Ro b e rts in ste a d o f to Ap p e lla n ts, in dism issin g

Ap p e ll a n t s ’ c o un te rc la im fo r re im b u rse m e n t, and in gra n tin g a tto rn e y fe e s to

R o b e r t s b a se d o n th e se e rro n e o u s ru lin g s. Ho we v e r, th e tria l c o urt p ro p e r l y

d ism isse d Ap p e lla n ts’ o th e r c o u n te rc la im s ba se d on ju d ic ia l im m u n ity a n d

c o rre c tly ru le d th a t th e c o u n ty c o u ld b e re q u ire d to p a y a tto rn e y fe e s to Ro b e rts

u n d e r OCGA § 9 -1 5 -1 4 b a se d o n th e d ism isse d c ou n te rc la im s. Ac c o rd in g ly

, we

a ffirm th e tria l c o u rt’s ju dg m e n t in pa rt a n d re v e rse it in p a rt, a n d we re m a n d th e

c a se fo r th e e n try o f a m o re lim ite d a tto rn e y fe e s a wa rd a nd to a llo w Ap p e lla n ts

th e o p p ortu n ity to p u rsu e th e ir c o u n te rc la im fo r re im b u rse m e n t.

1

. In 2 0 1 0

, Ju d g e C. Do n a ld P e p p e rs, S r. o f th e Sta te Co u rt o f Wa lk e r

Co u n ty wa s r e e le c te d to a fo u r-y e a r te rm o f o ffic e th a t sta rte d on Ja n u a ry 1

,

2 0 1 1. Effe c tiv e Ju ne 3 0

, 2 0 11

, Ju d g e P e p p e rs re tire d a fte r 2 6 y e a rs in o ffic e ;

a t th e tim e h e re tire d

, h e wa s a lle g e d ly m a kin g $ 1 7 2 ,1 0 2 .8 0 p e r y e a r, a lth o u g h

a p o rtio n o f h is sa la ry wa s re im b u rse d b y Ca t o o s a C o un ty fo r h is se rv ic e a s a

p a rt-tim e ju d g e in th a t n e ig h b o rin g c o un ty

. On S e p te m b e r 16

, 2 0 1 1

, Go v e rn o r

Na th a n De a l a n n o u n c e d th a t he wo u ld a p p o in t Bru c e Ro b e rts to fill th e v a c a n c y

.

2On S e p te m b e r 30

, 2 0 1 1

, Ro b e rts m e t wi t h Be b e He isk e ll, Wa lk e r

Co u n ty ’s so le c o m m issio n e r. He isk e ll in fo rm e d Ro b e rts th a t th e b a se sa la ry fo r

th e sta te c o u rt ju d g e p o sitio n wa s $ 6 0 ,0 0 0 p e r y e ar, se e Ga

. L

. 19 9 4

, p

.

3 7 2 6, § 1

, b ut sh e a lle g e dly o ffe re d to p a y h im a t th e ra te o f $ 1 0 0 ,0 0 0 p e r y e a r,

slig htly m o re th a n th e $ 9 4 ,0 0 0 th a t h e wa s m a k in g in h is p re v io us jo b

. Ro b e rts

re q u e ste d $ 1 1 0 ,0 0 0

, b u t H e isk e ll d e c lin e d

, c itin g b u d g e t c o n stra in ts. Ro b e rts

wa s swo rn in to o ffic e o n Oc to b e r 3

, 2 0 1 1

. H e s t o o d fo r e le c tio n in th e n e x t

n o n pa rtisa n g e ne ra l e le c tio n in Ju ly 2 01 2, b u t h e lo st, m e a n in g th a t h is te rm o f

o ffic e wo u ld e n d o n th e la st d a y o f 20 12

. D u r i n g t h e pe rio d fo llo win g h is

d e fe a t, Ro b e rts d ism isse d a b o u t 6 0 tra ffic c a se s. Th e c o u n ty p a id Ro b e rts a t a n

a n n u a liz e d ra te o f $ 10 0 ,0 0 0 fo r th e 1 5 -m o n th p e rio d th a t h e h e ld o ffic e

.

On Oc to b e r 2 5

, 2 0 1 2

, Ro b e rts file d a c o m p la in t fo r m a n da m

u s a nd o th e r

re lie f a g a in st Co m m issio ne r He isk e ll ( i n h e r o ffic ia l c a p a c ity ) a n d Wa lk e r

Co u n ty

. Ro b e rts so u g h t to re c o v e r th e d i f f e r e nc e b e twe e n wh a t h e wa s b e in g

p a id a n d wh a t Ju d g e P e p p e rs wo u ld h a v e b e e n p a id fo r th e sa m e p e rio d b a se d

o n th e p ro v isio n o f Artic le VI, S e c tio n VII, P ar a g r a p h V o f th e Ge o rg ia

Co n s t itu tio n o f 1 9 8 3 th a t sa y s: “An in c u m b e n t’s sa la ry , a llo wa n c e , o r

su p p le m e n t sh a ll n o t b e d e c re a se d d u ri n g th e in c u m b e n t’s te rm of o ffic e .”

3Ro b e rts a lso a sk e d fo r th e c o u n ty to p ro vid e h im with le g a l re pre se n ta tio n , b u t

th e c o u n ty d id n o t d o so

. Ap p e lla nts f i l e d a n a n swe r a n d c o u n te rc la im s fo r

b re a c h o f c o n tra c t, “ in te n tio n a l in flic tio n o f m o n e ta ry d a m a ge s,” a n d in te n tio n a l

in flic tio n o f e mo tio n a l d istre ss, a ll b a se d o n Ro b e rts’s d ism issa l of th e tra ffic

c a se s. Ap p e lla n ts la te r a d de d a c o u n te rc la im se e k in g re im b urse m e n t o f a ll

sa la ry p a id to Ro b e rts a t a n a n n u a liz e d ra te g re a te r th a n $ 6 0

, 0 0 0 ; th e a lle g e d

o v e rp a y m e n ts to ta le d a

b o u t $ 5 0 ,0 0 0

.

Ro b e rts file d a m otio n fo r s u mma ry ju d g m e n t, a nd Ap p e lla nts file d a

c ro ss-m o tio n fo r p a rti a l s u mma r y ju d g m e n t. Afte r a h e a rin g, th e tria l c o urt

e n te re d a n o rd e r o n Oc to b e r 3 0

, 2 0 1 3

, g ra n tin g Ro b e rts’s m a nd a m u s c la im a n d

d ire c tin g Co m m issio n e r He isk e ll to p a y h im $ 7 8 ,8 7 8.5 5 fro m c o u n ty fu n d s fo r

“ sa la ry d u e a n d u n p a id

, ” d ism issin g A p p e l l a nts’ c ou nte rc la im s a s b a rre d b y

ju d ic ia l im m

u n ity

, a nd re q u irin g A p p e lla n ts to p a y R o b e r t s ’ s a tto rn e y fe e s b a se d

in p a rt o n Gwin n e tt Co u n ty v

. Ya te s, 2 6 5 Ga

. 5 0 4 (4 5 8 S E2 d 79 1) (1 99 5 ), a n d

in p a rt o n OCGA § 9 -1 5 -1 4

. 1 Th e c o u r t a lso dism isse d Wa lk e r Co u n ty a s a

d e fe n d a n t with re sp e c t to Ro b e rts’s m a n da m us c la im

, b u t le ft th e c o u n ty a s a

1 The amount of attorney fees has not y et been determined.

4d e fe n d a n t o n R o b e rts’s c la im fo r a tto rn e y fe e s b a se d on Ap p e lla n ts’

c o u n te rc la im s. Ap p e lla n ts file d a tim e ly n o tic e o f a

p pe a l. 2

2

. Citin g c a se s in vo lv in g m a g istr a te ju d g e s, th e tria l c ou rt h e ld th a t

Ro b e rts wa s e n title d to th e sa m e c o m p e n sa tio n th a t Ju d g e P e pp e rs wa s re c e iv in g

b e c a u se Ro b e rts wa s a

p p o in te d to th e “ u n e x p ire d te rm ” o f Ju d g e P e p p e rs th a t

b e g a n o n Ja n u a ry 1

, 2 0 11

, a n d e n d e d o n De c e m b e r 3 1

, 2 0 1 4

. In th e tria l c o u rt’s

v ie w, R o b e rts’s a

pp o in tm e n t a llo we d h im to se r v e th e p o rtio n o f Ju d g e

P e p pe rs’s fo u r-y e a

r te rm th a t ra n fro m th e d a t e t h a t Ro b e rts wa s swo rn in

,

Oc to b e r 3

, 2 0 1 1

, th ro u g h th e e n d o f 2 0 1 2

, with th e r e q u i re m e n t th a t he ru n in

a n d win th e Ju ly 2 0 1 2 e le c tio n in o rd e r to se rv e th e po rtio n o f Ju dg e P e p p e rs’s

te rm th a t ra n fro m Ja nu a ry 1

, 2 0 1 3

, th ro u g h t h e e n d of 2 0 1 4

. Th a t is n o t,

h o we v e r, th e sc h e m e th a t th e 1 9 8 3 G e o r g i a C o n stitu tio n e sta b lish e d fo r th e

te rm s o f o ffic e fo r ju d g e s a pp o in te d to fill v a c a n c ie s o n o u r a pp e lla te

, su p e rio r,

a n d sta te c o u rts.

2 On F ebruary 17, 2014, Roberts filed a motion to dismiss the a ppeal o n the gr o u nd that Appellants were required to file an appl i c a tion for discretionary appeal and failed to d o so, citing OCGA § 5-6-35 (a) (10), which requires the filing of an application for “[ a] ppeals from awards of
attorney ’s fees or ex penses of litig a tion under Code Section 9 -15-14.” On March 10, we denied the
motion based on O CGA § 5-6-34 (d), which p e rmits Appellants to challeng e the attorney fees ruling s without f iling an application as part of their direct appeal of the m andamus order authoriz ed by
OCGA § 5-6-34 (a) (7). See Stancil v

. Gwinnett County

, 259 Ga. 507, 508 (384 SE2d 6 6 6) (1989).

5Th is c a se is c o n tro lle d b y se v e ra l p ro v isio n s o f S e c tio n VII (“ S e le c tio n ,

Te rm , Co m

pe n sa tio n , a n d Disc ip lin e o f Ju d g e s” ) o f A r tic le VI (“ Ju d ic ia l

Bra n c h” ) o f th e 1 9 8 3 Co n stitu tio n . P ara g ra p h I o f th e se c tio n sa y s:

All su p e rio r c o u rt a nd sta te c o u rt ju dg e s sh a ll b e e le c te d o n a

n o n p a rtisa n b a sis fo r a t e rm o f fo u r y e a rs. All Ju stic e s o f th e S u p re m e Co u rt a n d th e Ju d g e s o f th e Co u rt o f Ap p e a l s s h a ll b e

e le c te d o n a n o n p a rtisa n b a sis fo r a te rm o f six y e ars. Th e te rm s o f

a ll ju d g e s th u s e le c te d sh a ll b e gin th e ne x t Ja n u a ry 1 a fte r th e ir

e le c tio n

. . . .

P a ra gra p h III sa y s th a t v a c a n c ie s in th e se ju d ic ia l o ffic e s will b e fill e d b y

g u b e rn a to ria l a

p p o in tm e n t, a n d P a ra g ra

p h IV th e n sa y s th a t su c h a n a p p o in te e

“ sh a ll se rv e un til a su c c e sso r is d u ly se le c te d a n d q u a lifie d a n d u n til Ja n u a ry 1

o f th e y e a r fo llo win g th e n e x t g e n e r a l e l e c tio n wh ic h is m o re th a n six m o n th s

a fte r su c h p e rso n ’s a

p p o in tm e n t.”

Th e e ffe c t o f th e se p ro visio n s is to c re a te a n e n tire ly n e w a nd sh o rte n e d

in itia l te rm o f o ffic e fo r th e a p p o in te d ju d g e

. Un lik e p e rso ns a p p o in te d to fill

v a c a n c ie s in m o st o th e r p u b lic o f f ic e s, a p po in te e s to sta te

, su p e rio r, a n d

a p p e lla te ju d g e sh ip s d o n o t se rv e o u t th e “u n e x pire d te rm ” o f th e ir

p re d e c e sso rs. 3 Ra th e r, t h e s e ju d ic ia l a p p o in te e s m

u st b e e le c te d b e fo re b e in g

3 Thus, in contrast to t h e p r ovisions of the J udicial B ranch Article, the Ex ecutive B ranch Article say s:

6e n title d to se rv e a fu ll fo u r- o r six -y e a r te rm , a lth o u g h th e y a re g iv e n a t le a st six

m o n th s to se rv e b e fo re th e y h a v e to sta n d fo r e le c tio n. As th is Co u rt e x p la in e d

in P e rd u e v

. P a lm ou r, 2 78 Ga . 2 1 7 (6 0 0 S E2 d 3 7 0 ) (2 0 0 4 ):

“ Th e Co n stitu tio n do e s n o t p ro vid e u n ifo rm ly fo r th e te rm o f a n

a p p o in te e wh e n a v a c a

n c y is fille d [o n th e se c o u rts]

. . . . Th e

a p p o in te e ’s te rm will b e a t le a st a pp ro x im a te ly e ig h t m on th s (to th e

n e x t Ja n u a ry 1 ), a

n d no t le ss th a n six m o nth s b e fo re h e is re q u ire d

to ru n fo r a fu ll te rm

. Th u s, o n o n e sid e o f th e c oin

, so m e o n e

a p p o in te d to fill a v a c a n c y o c c u rrin g a t th e b e g in nin g o f a six -y e a r
te rm will n o t b e im m

u n e fro m v o te r c o n sid e ra tio n fo r t h a t e n tire

p e rio d ; he wo u ld h a v e to ru n in th e n e x t g e ne ra l e le c tio n

. On th e

o th e r sid e o f th e c o in

, so m e o n e a p p o in te d b e twe e n Ju n e a n d

No v e mb e r o f a g e n e ra l e le c tio n y e a r wo u ld n ot ha v e to ru n im m e d ia te ly a n d wo u ld h a v e a little ov e r two y e a rs to d e m on stra te h is q u a lific a tio n s a s a j u d g e

. . . . Th is is a p ra c tic a l b a la n c e b e twe e n d e m o c ra c y a n d sta b ility .”

Id . a t 2 2 0 (c ita tio n o m itte d). 4

W h en any public office shall become vacant by death, resig nation, or otherwise, the
Governor shall p r o m p tly fill such vacancy unless otherwise p rovided by this
Constitution o r by law; and p ersons so appointed shall serve for the unexpired term unless otherwise provided by this Constitution or by

law.

Art. V, Sec. I I

, Par. VI I I (a) (emphasis added). See a lso Par. VI I I (b) (providing that in case of death

or withdrawal of the winner of an election for Secretary of State, At t o r n e y General, State School Superintendent, Commissioner o f I n s urance, Commissioner of Ag riculture, or Commissioner of

L abor, the incoming G overnor shall appoint, with Senate confirmation, a replacement to serve until

t h e n e x t g e n e ral election and until a successor h as been e lected and qualified to serve out “t h e balance of the u nexpired term ” (emphasis added)).

4 W e note that the “ at least approx imately e ig ht months” calculation in Palmour was based

on g eneral elections f

or these judg e s being h e ld in November, as they were in 2 0 04. These judg es

are now elected in the n onpartisan g eneral election held j o i n t l y with the partisan g e neral primary

7Th u s, th e re is no lo n g e r s u c h a th in g a s a n a p p o in tm e n t to se rv e o u t th e

“ u n e x p ire d te rm ” o f a n a

pp e lla te

, su p e rio r, o r sta te c o u rt ju d g e

. S e e id

. a t 2 2 1

(Ca rle y , J., c o n c u rrin g ) (“ [U] n lik e th e p rio r c o n stitu tio n a l p ro visio n s

. . . , Art.

VI, S e c

. VII, P a r. IV of th e Ge o rg ia Co n stitu tio n of 1 98 3 e lim in a te s th e

u n e x p ire d te rm o f th e v a c a n t o ffic e

. . . . ” ). F o r a n a pp oin te d sta te c o u rt ju d g e ,

th e “ d e fin ite e x te n t o f tim e [h is] e le c tiv e o ffic e m a y b e h e ld ,” Le e v

. City o f

Villa Ric a , 2 6 4 Ga

. 6 06

, 6 0 9 (4 4 9 S E2 d 2 95 ) (1 99 5 ) (d e fin in g “ te rm o f o ffic e ”

in th is wa y ), is n o t de te rm in e d a t a ll b y h is p re d e c e sso r’ s t e r m o f o ffic e , a n d

in d e e d c a n n ot b e d e te rm in e d u n til h e is a p po in te d a nd a ssu m e s th e o ffic e

.

Lik e th e tria l c o u rt, Ro b e rts re lie s o n c a se s in vo lv in g th e sa la rie s o f

ma g istra te ju d g e s wh o we re a p p o in te d to fill v a c a n c ie s. S e e P i k e C o u n ty v

.

Ca lla w a y

- I n g ra m , 2 9 2 Ga

. 8 2 8 (7 4 2 S E2 d 4 7 1 ) (2 0 1 3 ); Le e v

. P e a c h Co u n ty

Bd

. o f Co mrs., 2 6 9 G a

. 3 8 0 (4 9 7 S E2 d 5 6 2 ) (1 99 8). T h is re lia n c e is m isp la c e d

.

Th e sa m e Artic le a nd Se c tio n o f th e 19 83 Co n stitu tio n th a t a b o lish e d th e o ld

sy ste m fo r th e se le c tio n a n d te rm s o f o ffic e o f a p p e lla te

, su pe rio r, an d sta te c o urt

ju d g e s e xp lic itly p re se rv e d th e th e n -e xistin g sy ste m fo r “ [a ] ll o th e r ju d g e s . . .

earlier in even-numbered y ears – on J uly

31 of 2012, for ex a mple. See OCGA § 21-2-138.

8u n til o th e rwise p ro v id e d b y lo c a l la w” a n d a u th o riz e d th e fillin g o f “ [v ] a c a n c ie s

. . . in th e m a g i s t ra te

, p ro b a te

, a n d ju v e n ile c ou rts” b y m e th od s o th e r th a n

g u b e rn a to ria l a

p p o in tm e n t if “ o th e rwise p ro v id e d b y la w.” A r t

. V I, S e c

. VII,

P a r. I a n d III. “ [ T ]o i mp l e m e n t c e rta in c ha n g e s re q u ire d b y Artic le V I o f th e

[1 9 8 3 ] Co n stitu tio n ,” Ga

. L. 1 9 8 3

, p

. 8 8 4

, § 1 -1

, th e Ge n e ra l Asse m b ly e n a c te d

a la w c o n c e rn in g m a g istra te c o u rts th a t c o n ta in e d th e fo llo win g p ro v isio n :

Un le ss o th e rwise pro v id e d b y lo c a l la w, a v a c an c y in th e o ffic e o f

c h ie f m a g istra te sh a ll be fille d by a n a p p o in tm e n t b y m a

jo rity v o te

o f th e ju d g e s o f su p e rio r c o u rt fo r th e re ma in d e r o f th e u n e x p ire d

t e r m ; a n d a v a c a n c y in th e o ffic e o f a n y o th e r m a g istra te sh a l l b e fille d b y a n a

p p oin tm e n t b y th e c hie f m a g istra te with th e c o n se n t o f
th e ju d g e s o f su p e rio r c o urt fo r th e re m a in d e r o f th e u n e x p ire d

te rm

. . . .

Id

., § 2 -1

, a t p p

. 8 8 8 -8 8 9 (c o d ifie d a t OCGA § 15 -1 0 -2 0 (e )) (e m ph a sis a d d e d ).

At th e sa m e se ssio n , th e Ge n e ra l Asse m b ly p a sse d a la w c on c e rn in g sta te c o u rts

th a t c o n ta in e d th e fo llo win g p ro v isio n :

In th e e v e n t o f a va c a n c y in th e o ffic e o f ju dg e o f th e sta te c o urt fo r

a n y re a so n e xc e p t th e e xp ira tio n o f th e te rm o f o ffic e , th e Go v e rn o r

s h al l a p p o in t a q u a lifie d p e rso n wh o sh a ll se rv e a s p ro v id e d in
Pa ra g ra p h s I I I a n d IV o

f S e c tio n VII o

f Artic le V

I o f th e Co n stitu tio n

.

Ga

. L. 1 9 8 3

, p

. 1 4 1 9

, § 2

, a t p

. 1 4 2 2 (c o d ifie d a s a m e n de d a t OCGA § 1 5 -7 -2 3 )

(e mp h a sis a d d e d ). Un lik e th e sta tu te c o nc e rn in g m a g istra te c o u rt ju d g e s, th e

9sta tu te c o n c er n i n g sta te c o urt ju d g e s d o e s n o t re fe r to “th e re m a in d e r o f th e

u n e x p ire d te rm ,” b e c a

use u n d e r th e 1 9 8 3 Co n stitu tio n, th a t c o nc e p t n o lo n g e r

h a s a n y a p p lic a tio n to ju d g e s a

p p o in te d to fill v a c an c ie s o n sta te c ou rts.

Ac c o rd in g ly

, a s a sta te c o u rt a p p o in te e , Ro be rts’s in itia l (a n d

, a s it tu rn e d

o u t, o n ly ) “ p e rio d of se rv ic e ,” P a lm o u r, 2 7 8 Ga

. a t 2 1 9

, wa s fro m h is swe a rin g

in o n Oc to b e r 3

, 20 11

, th ro u g h De c e m be r 3 1

, 2 0 1 2. Ha d Ro b e rts wo n th e

e le c tio n in Ju ly 2 0 1 2

, h e wo u ld h a v e se rv e d a n e w, fu ll, fo u r-y e a r te rm a s a sta te

c o u rt ju d g e sta rtin g o n Ja n u a ry 1

, 2 0 1 3

, a n d c o n tin u in g th ro u g h De c e m b e r 3 1

,

2 0 1 6; h e wo u ld n o t h a ve se rv e d o n ly th ro u g h t h e en d o f 2 0 1 4

, wh ic h is wh e n

Ju d g e P e p p e rs’s fo u r-y e a r te rm th a t sta rte d o n J a n u a ry 1

, 2 0 1 1

, wo u ld h a v e

e n d e d h a d h e no t re tire d

. In sh ort, Ro be rts d id n ot b e c o m e th e in c u m b e n t

se rv in g Ju dg e P e p p e rs’s te rm o f offic e ; h e se rv e d his o wn , 15 -m o nth -lo n g te rm

.

An d it is un d isp ute d th a t Ro b e rts wa s p a id th e sa m e sa la ry f o r t h e e n t ire 1 5

m o n th s. Th u s, th e re wa s n o v io la tio n o f th e p ro v isio n in A rtic le VI, S e c tio n

VII, P ara g ra

p h V th a t p re ve n ts a n in c u m b e n t ju d g e ’s s a l a r y fro m b e in g

d e c re a se d d u rin g h is te rm o f o ffic e , a n d we th e re fo re re v e rse th e tria l c o u rt’s

g ra n t o f su m m a ry ju d g m e n t to Ro b e rts a nd its d e n ia l o f su m m a ry ju d g m e n t to

Ap p e lla n ts o n th e m a n d a m u s c la im

.

1 03

. A p p e lla n ts c o n te n d th a t th e tria l c o u rt e rre d in ru lin g th a t th e i r

c o u n te rc la im s we re b a rre d b y j u d i ci a l im m un ity

. Ju dg e s a re “im m

u n e fro m

l i ab i l i ty in c iv il a c tio n s fo r a c ts p e rfo rm e d in th e ir ju d ic ia l c a p a c ity

. ” Ea rl v

.

Mills, 2 7 5 G a

. 5 0 3

, 5 0 4 (5 7 0 S E2 d 28 2) (2 0 0 2 ). Th is d o c trin e o f ju d ic ia l

im m u n ity

, wh ic h th e S u p re m e Co u rt o f th e Un ite d S ta te s h a s sa id “ is a s o ld a s

th e la w ,” is e sse n tia l to th e im p a rtia l a d m in istra tio n o f j u s t i c e

. Ra n d a ll v

.

Brig ha m , 7 4 U .S

. (7 Wa ll.) 5 2 3

, 5 3 6 (1 9 LE 2 8 5 ) (1 8 69 ). S e e a lso Ca lh o u n v

.

Little

, 10 6 Ga . 3 36 , 3 3 9 (3 2 S E 8 6 ) (1 9 9 8 ) (d e sc rib in g th e d o c trin e o f ju d ic ia l

im m u n ity a s “ firm ly fix e d in th e ju risp ru d e n c e of b o th En g la n d a n d th e Un ite d

S ta te s” ). Ju dic ia l im m

u n ity is o ve rc o m e in o nly two situ a tio n s:

F irst, a ju d g e is n o t im m

u n e fro m liab ility fo r no nju d ic ia l a c tio n s, i.e

., a c tio ns n o t ta k e n in th e ju d g e ’s ju d ic ia l c a pa c ity

. S e c o n d

, a ju d g e is n o t im m

u n e fo r a c tio n s, th o ug h ju dic ia l in n a tu re , ta k e n in
th e c o m p le te a bse nc e o f a ll ju risd ic tio n

.

Mire le s v

. Wa c o, 5 0 2 U.S

. 9

, 1 1 -1 2 (1 1 2 S Ct 28 6, 1 1 6 LE2 d 9 ) (1 9 9 1 ) (c ita tio n s

o m itte d ). Ac c o rd Wilso n v

. Mo o re , 2 7 5 G a

. Ap p

. 4 93

, 4 9 4 (6 2 1 S E2 d 5 0 7 )

(2 0 0 5 ). S e e a lso In re M o ra le s, 2 8 2 Ga

. 4 7 1

, 4 7 2 (6 5 1 S E2 d 8 4) (2 0 07 ) (c itin g

Mire le s a n d n o tin g “th e we ll se ttle d la w th a t ju d ge s a c tin g w ith in th e ir ju d ic ia l

c a p a c ity a re im m

u n e fro m su it fo r m on e y d a m a g e s” ).

1 1(a ) Ap pe lla n ts’ c ou nte rc la im s a g a in st Ro be rts fo r b re a c h o f

c o n tra c t, “ in te n tio n a l in flic tio n o f m o n e ta ry d a m a g e s, ” a n d i n t e n tio na l in flic tio n

o f e m o tio n a l d istre ss we re b a se d on h is d ism issa l o f a b o u t 6 0 tra ffic c a se s a fte r

h is d e fe a t in th e Ju ly 20 12 g e n e ra l e le c tio n

. Th e tria l c o u rt c o rre c tly c o n c lu d e d

th a t Ro be rts wa s e x e rc isin g a j u d ic ia l fu nc tio n w h e n h e d ism isse d th e tra ffic

c a se s, b e c a

u se a d ju d ic a tio n o f su c h c a se s is a fu n c tio n n orm a lly p e rfo rm e d b y

a ju dg e

. S e e Mire le s, 5 0 2 U.S

. a t 1 2 -1 3

. Mo re o v e r, Ap p e lla nts d o n o t d isp u te

th a t th e S ta te Co u rt o f Wa lk e r Co u n ty h a s su b je c t m a tte r ju risd ic tio n o ve r tra ffic

c a se s su c h a s th e o n e s th a t Ro b e rts d ism isse d

, m u c h le ss c la im th a t h e a c te d in

th e “ c o m p le te a b se n c e o f a ll ju risd ic tio n” o v e r su c h c a se s. Id

. a t 1 2

.

Ap p e lla n ts’ a rg u m e n t th a t ju d ic ia l im m u n it y a p p lie s o n ly to “ c la im s”

b ro u g h t a g a i n s t a ju d g e a n d no t to “ c o u n te rc la im s” bro u g h t a g a in st a ju d g e is

b a se le ss. A “ c o u n te rc la im ” is sim p ly th e wa y th a t a d e fe n da n t b rin g s a “ c la im ”

a g a in st th e p la in tiff in a n e x istin g la wsu it. OCGA § 9 -1 1

- 1 3 ( a ), (b ). S u c h

c la im s d o n o t a v oid im m u n ity d e fe n se s b e c a u s e th e y a re la b e le d

“ c o u n t e r c la im s.” S e e OCGA § 9 -1 1 -1 3 (d ); De p t. o f Hu m an Re so u rc e s v

.

Mo n e y , 2 2 2 Ga

. A p p

. 14 9

, 14 9 (4 7 3 SE2 d 2 0 0 ) (1 9 9 6 ) (a p p ly in g so v e re ig n

im m u n ity to c o u n t e r c l aim s). S e e a lso Hu d so n V ie w II Asso c s. v

. Mille r, 6 6 4

1 2NYS 2 d 2 2 3

, 2 2 4 (N.Y. S u p

. Ct. 19 97 ) (a p p ly in g ju d ic ia l im m

u n ity to

c o u n te rc la im s); Wa lto n v. Wa tts (In re Swift), 1 8 5 B.R. 9 6 3

, 9 7 0 (Ba n k r. N.D.

Ga . 1 99 5 ) (a

p p ly in g qu a si-ju d ic ia l im m u n ity to c o u n te rc la im s). Ac c o rd in gly

,

th e tria l c o urt p ro p e rly d ism isse d th e c o u n te rc la im s b a se d o n Ro b e rts’s h a n d lin g

o f tra ffic c a se s a s b a rre d b y ju d ic ia l im m u nity

.

(b ) Ap pe lla n ts’ c o u n te rc la im to re c o ve r a l le g e d sa la ry

o v e rp a y m e n ts to Ro b e rts is a d i f f e r e n t m a tte r. Th e tria l c ou rt d id n o t

sp e c ific a lly a d d re ss th is c o u n te rc la im in its o rd e r, bu t re c e iv in g a n in c o rre c tly

c a lc u la te d p a

y c h e c k p la in ly is n o t a ju d ic ia l fu nc tio n

. Se e F o rre ste r v

. Wh ite

,

4 8 4 U.S

. 2 1 9

, 2 2 7 -2 2 9 (1 0 8 S Ct 5 3 8

, 9 8 LE2 d 55 5 ) (1 9 8 8 ) (d i s c u ssin g th e

d istin c tio n “ b e twe e n tru ly ju d ic ia l a c ts, fo r wh ic h im m u nity is a p p ro p ria te

, a n d

a c ts th a t sim

p ly h a p p e n to h a v e b e e n d o n e b y ju d g e s,” a n d e x p la in in g th a t it is

“ th e n a tu re o f th e fu n ct i o n p e rfo rm e d

, n o t th e id e ntity o f th e a c to r wh o

p e rfo rm e d it,” th a t in fo rm s th e im m u n ity a n a ly sis). S e e a lso Ma d d ox v

. Ha y e s,

2 7 8 Ga

. 1 4 1

, 1 4 2 (5 9 8 S E2 d 5 0 5 ) (2 0 0 4 ). T h u s, ju d ic ia l im m u n ity d id n o t b a r

1 3Ap p e lla n ts’ c o un te rc la i m fo r re im b u rse m e nt, and we th e re fo re re ve rse th e

d ism issa l o f th a t c o u n te rc la im

. 5

4

. In lig h t o f th e a

b o v e h o ld in g s, th e tria l c o u rt’s a wa rd o f a tto rn e y

fe e s to Ro b e rts m u st b e lim ite d

.

(a ) Th e tria l c o u r

t o r d e r e d A

p p e l l a n t s to pa y R o b e rts’s re a so n a b le

a tto rn e y fe e s re su ltin g fro m th e m a nd a m u s a c tio n p u rsu a n t to Gwin n e tt Co u n ty

v . Ya te s, 2 6 5 Ga . 5 0 4 (4 5 8 S E2 d 7 9 1 ) (1 9 9 5 ), in wh ic h th is Co u rt h e ld :

[W] h e re

. . . a n o ffic ia l, a c tin g in h is o ffic ia l c a p a c ity

, is re qu ire d to h ire o u tsid e c ou n se l to a sse rt a le g a l po sitio n th e lo c a l go ve rn m e n t

a t t o rn e y c a

n n o t (b e c a

use o f a c o nflic t in re pre se n tin g th e lo c a l

g o v e rn m e n t) o r will n o t a sse rt, a nd th e o ffic ia l is su c c e ssfu l in

a sse rtin g h is o r h e r p o sitio n , th e lo c a l g o v e rn m e n t m u st p a y th e

o ffic ia l’s a tto rn e y fe e s. Th is is n o t b e c a use o f a n y b a d fa ith o r im p ro p e r c o n d u c t o n th e p a rt of th e lo c a l g o v e rn m e nt

. . . . Ra th e r,

5 Other than holding that t h e reimbursement c ounterclaim is not barred by judicial immunity

,
we ex press no opinion on the merits of the claim. W e note, however, that the c laim may depend at least in part on whether the annualiz ed $40,000 supplement paid to Roberts a bove the $60,000 base salary established by local law was p roperly approved and documented in a budg et or other county ordinance. OCGA § 15-7-22 say s, “J u d ges of the state courts shall be compensated from county funds as provided by

local law.

. . .,” which for W alker County say s that “[ t] he judg e of said state

court shall receive a salary of $60,000.00 per annum,” Ga. L

. 1994, p. 3726, § 1. OCGA § 15-7-22
also say s, “The county g overning authority is authoriz ed to supplement the compensation thus fix ed

to b e paid to the judg es of the state cour t of that county

, ” but even in a county with a sole
commissioner f

orm of g overnment, ordinances must be put in writing and filed in the official records
of the commissioner in order to be effective. See Mortg ag e Alliance Corp. v. Pickens County

, 294
Ga. 212, 217-218 (751 SE2d 5 1) ( 2013). Moreover, the county c annot be estopped from seeking
reimbursement based on a n y commitments that Commissioner Heiskell may have made to Roberts
in the ex ercise of an u nconferred power. See City o f B aldwin v. W oodard & Curran, I nc., 293 Ga. 19, 27-29 (743 SE2d 381) (2013); Maddox , 278 Ga. at 142.

1 4a tto rn e y fe e s in th is in sta n c e are sim p ly a n e x pe n se o f go ve rn m e n t

o p e ra tio n

.

Id

. a t 5 0 8 -5 0 9

. As Ya te s sa y s, th e o ffic ia l’s e n title m e n t to a tto rn e y fe e s de p e n d s

o n his su c c e ss in a sse rtin g h is p o sitio n in c o u rt. S e e B o a r d o f C o mrs. o f

Do u gh e rty Co u n ty v. S a

b a , 2 78 G a

. 1 7 6

, 1 79 (5 9 8 S E2 d 4 3 7 ) (2 0 0 4 ). Be c a use

we h o ld in Div isio n 2 a

b o v e th a t th e tria l c o u rt e r r e d in g ra n tin g su m m a ry

ju d g m e n t on th e m a nd a m u s c la im to Ro b e rts in ste a d o f to Ap p e lla n ts, Ro b e rts

h a s no t pre v a ile d o n th a t c la im

, a n d we th e re fo re re v e rse th e a tto rn e y fe e s a wa rd

b a se d o n Ya te s.

(b ) Th e tria l c o u rt a lso o rd e re d Ap pe lla n ts to p a y Ro b e rts’s

re a so na b le a tto rn e y f

e e s in c urre d in d e fe n d in g a g a in st Ap p e lla n ts’

c o u n te rc la im s. T h is a wa rd wa s b a se d o n OCGA § 9 -1 5-1 4

, “ wh ic h a u th o riz e s

a tria l c o u rt to a wa rd ‘re a so n a b le a n d n e c e ssa ry ’ a tto rn e y fe e s a n d litig a tio n

c o sts in c iv il c a se s a ga in st a p a rty th a t h a s e n g a g e d in a b u siv e l i t i g a tio n .”

Willia m s v

. Be c k e r, 2 9 4 Ga

. 41 1

, 4 1 3 (7 5 4 S E 2d 11 ) (2 0 1 4 ). OCGA § 9 -1 5 -1 4

(a ) re q u ire s a n a sse ssm e n t o f a tto rn e y fe e s an d litig a tio n e x p e n se s a g a in st a n y

p a rty th a t h a s “ a sse rte d a c la im

. . . with r e s p e c t to wh ic h th e re e x iste d su c h a

1 5c o m

p le te a b se n c e of a n y ju stic ia b le issu e of la w o r fa c t th a t it c o u ld n o t b e

re a so na b ly b e lie v e d th a t a

c o u rt wo u ld a c c e p t [th e c la im ] .”

Th e tria l c ou rt c o n c l u d e d t ha t Ap p e lla n ts’ c o u n te rc la im s fit th is

d e sc rip tio n

. We a g re e th a t th e c ou n te rc la im s fo r b re a c h of c o n tra c t, “ in te n tio n a l

in flic tio n o f m o n e ta ry d a m a g e s” (wh a te v e r th a t is), a n d in te n tio n a l in flic tio n o f

e m o tio n a l d istre ss b a se d o n Ro b e rts’s d ism issa l o f th e tra ffic c a se s we re to ta lly

la c k in g in le g a l j u stific a tio n b e c a u se th e y we re u n q u e stio n a bly b a rre d b y

ju d ic ia l im m

u n ity

. Ho we v e r, a s d i s c u sse d in Div isio n 3 (b ) a b o v e , th e tria l

c o u rt e rre d in d ism issin g Ap p e lla nts ’ c o u n t e r c l a im fo r re im b u rse m e n t o f a lle g e d

sa la ry o v e rp a yme n ts to Ro b e rts. It fo llo ws th a t th e c o u rt e rre d in a w a rd in g

Ro b e rts a tto rn e y fe e s i n c u r r e d in d e fe n d in g a g a in st th a t c o u n te rc la im

, a n d we

th e re fo re re v e rse th e a wa rd m a d e u n d e r § 9 -1 5-1 4 to th e e x te n t th a t it wa s b a se d

o n th e re im

b urse m e n t c o u n te rc la im

. S e e Ha rd m an v

. Ha rd m a n , Ca se No

.

S 1 4 A1 1 8 7 (d e c id e d S e p t. 2 2

, 2 01 4 ), 20 14 W L 4 6 6 7 5 3 8

, a t * 6

. On re m a n d

, th e

tria l c o u rt sh o u ld e n te r a n a w a rd b a se d so le ly o n Ro b e rts’s re a so na b le a tto rn e y

fe e s a n d litig a tio n e x p e n se s i n c u r r e d in d e fe n d in g a g a in st th e o th e r th re e

c o u n te rc la im s. S e e id

.

1 6(c ) F in a lly

, Ap p e lla n ts a rg u e th a t th e tria l c o u rt e rre d in fa i l in g

to dism iss th e c o u n ty a s a de fe n d a nt with re sp e c t to R o be rts’s c la im fo r a tto rn e y

fe e s u n d e r OCGA § 9 -1 5 -1 4 b e c a u se th e c o u n ty wa s n o t a p ro p e r d e fe n d a n t a s

to h is m a n da m

u s c la im

, a s th e tria l c o u rt h e ld

. Ho we v e r, § 9 -1 5 -1 4 (a ) re q u ire s

a tria l c o u rt to a wa rd re a so n a b le a tto rn e y fe e s to “ a n y pa rty a g a in st wh o m

a n o th e r p a rty h a s a s s e r t e d a c la im ” th a t is so c o m p le te ly la c kin g in le g a l o r

fa c t u a l s u b sta n c e th a t it c o u ld n o t re a so na b ly b e be lie v e d th a t a c o u rt wo u ld

a c c e p t th e c la im

. Th e s ta tu te d o e s n o t e x c lu d e friv olo u s c la im s a sse rte d by a

p a rty th a t b e lie v e s it sh o u ld n o t h a ve b e e n n a m e d in th e la wsu it, an d Ap p e lla n ts

h a v e p o in te d u s to n o a

u th o rity su p p o rtin g su c h a n e x c e p tio n

. I n d e e d

, with

re sp e c t to th e c o u n te rc la im s it b ro ug ht, th e c o u n ty wa s a c tin g a s a p la in tiff, n o t

a d e fe n d a n t. Ac c o rd in g ly

, th e tria l c o u rt d id n o t e rr in d ism issin g th e c o u n ty a s

a d e fe nd a n t o n ly with re sp e c t to Ro b e rts’ s m a nd a m u s c la im

, le a v in g th e c o u n ty

a s a de fe n d a n t o n h is c la im fo r a t t o rn e y fe e s b a se d o n th e g ro u n d le ss

c o u n te rc la im s th a t th e c o u n ty e le c te d to file

.

Ju d g m e n t a ffirm e d in p a rt a n d re v e rse d in p a rt, a n d c a se re m a n de d with

d ire c tio n. All th e Ju stic e s c on c u r.

1 7